Please cite this paper as:

OECD (1996), Effective Communications Between the PublicService and the Media, SIGMA Papers, No. 9, OECDPublishing.http://dx.doi.org/10.1787/5kml6g6m8zjl-en

SIGMA Papers No. 9

Effective CommunicationsBetween the Public Serviceand the Media

OECD

General Distribution OCDE/GD(96)118

EFFECTIVE COMMUNICATIONS BETWEEN THE PUBLIC SERVICE AND THE MEDIA

SIGMA PAPERS: No. 9

ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT

Paris 1996

40833

Document complet disponible sur OLIS dans son format d'origineComplete document available on OLIS in its original format

2THE SIGMA PROGRAMME

SIGMA - Support for Improvement in Governance and Management in Central and EasternEuropean Countries - is a joint initiative of the OECD Centre for Co-operation with the Economies inTransition and EC/Phare, mainly financed by EC/Phare. The OECD and several OECD Member countriesalso provide resources. SIGMA assists public administration reform efforts in Central and EasternEurope.

The OECD - Organisation for Economic Co-operation and Development - is anintergovernmental organisation of 27 democracies with advanced market economies. The Centre channelsOECD advice and assistance over a wide range of economic issues to reforming countries in Central andEastern Europe and the former Soviet Union. EC/Phare provides grant financing to support its partnercountries in Central and Eastern Europe to the stage where they are ready to assume the obligations ofmembership of the European Union.

Established in 1992, SIGMA operates within the OECD's Public Management Service (PUMA).PUMA provides information and expert analysis on public management to policy-makers in OECDMember countries, and facilitates contact and exchange of experience amongst public sector managers.Through PUMA, SIGMA offers eleven countries a wealth of technical knowledge accumulated over manyyears of study and action.

Participating governments and the SIGMA Secretariat collaborate in a flexible manner toestablish work programmes designed to strengthen capacities for improving governance in line with eachgovernment's priorities and SIGMA's mission. The initiative relies on a network of experienced publicadministrators to provide counselling services and comparative analysis among different managementsystems. SIGMA also works closely with other international donors promoting administrative reform anddemocratic development.

Throughout its work, SIGMA places a high priority on facilitating co-operation amonggovernments. This includes providing logistical support to the formation of networks of publicadministration practitioners in Central and Eastern Europe, and between these practitioners and theircounterparts in OECD Member countries.

SIGMA's activities are divided into six areas: Reform of Public Institutions, Management ofPolicy-making, Expenditure Management, Management of the Public Service, Administrative Oversight,and Information Services.

Copyright OECD, 1996

Applications for permission to reproduce or translate all or part of this material should be made to:Head of Publications Service, OECD, 2, rue Andr-Pascal, 75775 Paris Cedex 16, France.

Views expressed in this publication do not represent official views of the Commission, OECDMember countries, or the central and eastern European countries participating in the Programme.

3FOREWORD

Citizens have a right to know the policies and activities of their government. In awell-functioning democracy, the government provides reliable and timely information to the public.Effective communications between the government and the public is especially important in countries intransition, where major changes in state institutions - indeed in all aspects of life - have left the citizenryuncertain about the new roles of the government and public administration, and how to convey their viewsto representatives of the state.

To reach large numbers of the population, governments everywhere rely heavily on radio,television, magazines and newspapers. The media filters and analyses information from authorities to thecitizens, and thus governments must take into account this "intermediary role" of the media when theyseek to communicate with the population.

More than ever, the credibility of the government and the acceptance of public policies dependson the degree to which it is open with the media. A relationship that stresses a free flow of informationbetween government and the media is necessary from the inception of a public policy. When the public isallowed to understand the development of a policy, it is then easier for government to build support andimplement it and underlying objectives - such as reform of the public administration.

In November 1995, SIGMA and the Hungarian Ministry of Interior organised a seminar entitled,"The Civil Service and Communication". The event, financed in part by the European Union PhareNational Programme, brought together three dozen civil servants responsible for press and information atvarious ministries and government bodies and Hungarian journalists. Its purpose was to examine ways tostructure and operate a government office of information to promote effective communication betweenpublic servants and the media, and to enhance media coverage of public administration reform.

This publication comprises six papers presented at the seminar by five experts incommunications, three working in public administrations in Western Europe and Canada, and twojournalists based in Budapest. A background issues paper which sets the stage for seminar discussionsprecedes these other papers. The annexes comprise sample codes of ethics for journalists and governmentcommunicators.

4A key theme which participants and invited speakers returned to time and time again was theneed for a co-ordinated governmental communications policy linked from the beginning to the process offormulating, adopting and implementing a policy. They noted that government communications strategieswhich are well co-ordinated across the public administration, timely, pro-active, and sensitive to the needsof journalists are more likely to be successful than those that are not.

This report appears as the ninth in the SIGMA Papers series, inaugurated in 1995.It is alsoavailable in French with the following title: Pour une communication efficace entre les services publicset les mdias. The publication is intended as a reference tool for civil servants in countries in transitionwho provide information to the public as part of their responsibilities. This includes public affairsofficers, individuals in press departments, persons conducting public service advertising campaigns, andmanagers who frequently talk to journalists in the course of their work.

For more information on the SIGMA Programme and its support to central and eastern Europeangovernments reforming their public administrations, contact the address below.

Bob BonwittHead of the SIGMA ProgrammeJuly 1996

SIGMA-OECD2, rue Andr-Pascal

75775 Paris Cedex 16, FranceTel (33.1) 45.24.79.00 or 45.24.13.94

Fax (33.1) 45.24.13.00e-mail: sigma.info@oecd.org

http://www.oecd.org/puma/sigmaweb

5TABLE OF CONTENTS

THE SIGMA PROGRAMME................................................................................................................... 2

FOREWORD............................................................................................................................................ 3

BACKGROUND PAPER ......................................................................................................................... 7The Need to Communicate.................................................................................................................... 7Learning Skills and Targeting Audiences .............................................................................................. 7The Role of the Media........................................................................................................................... 8Communicating Reform to the Media ................................................................................................... 8Formulating a Communications Programme.......................................................................................... 9Issues for Discussion............................................................................................................................10

1. GOVERNMENT COMMUNICATIONS IN THE UNITED KINGDOM.............................................12Learning on the Job..............................................................................................................................13The Role of Television.........................................................................................................................14Serving as a Go-Between .....................................................................................................................15Communicating Changes .....................................................................................................................16

2. GOVERNMENT COMMUNICATIONS IN BELGIUM......................................................................17Objectives of the Federal Information Service (FIS).............................................................................18Federal Authorities Information Project................................................................................................19Information Officers.............................................................................................................................19Postbus 3000/Bote postale 3000..........................................................................................................20Information Centre and Publications ....................................................................................................21The FIS in Numbers.............................................................................................................................22Target Groups ......................................................................................................................................23Informational Needs of the Population .................................................................................................24Organisation of the FIS ........................................................................................................................24

The Network of Information Officers ...............................................................................................24Structure of the FIS ..........................................................................................................................25

Working Procedures.............................................................................................................................26Official Guidelines for Government Information ..............................................................................26Telephone Enquiries.........................................................................................................................26Types of Information Provided.........................................................................................................27

Co-Operation with Journalists ..............................................................................................................27Differing Roles.................................................................................................................................27

Trends in Government Information ......................................................................................................28Recent Events and Campaigns..............................................................................................................29

3. GOVERNMENT COMMUNICATIONS IN CANADA.......................................................................30Introduction .........................................................................................................................................30

Principles of Government Communications......................................................................................30Role of Elected Representatives and Public Servants ........................................................................30

6The Communications Policy ............................................................................................................31Functions and Activities of the Office ..................................................................................................31

Mission Statement............................................................................................................................31Innovative Communications Activities .............................................................................................32

Organisation and Staff of Office...........................................................................................................33Relationships and Functions.............................................................................................................33Co-ordination Across Government ...................................................................................................34Careers/Training...............................................................................................................................35

Working Procedures.............................................................................................................................35Career Civil Servants .......................................................................................................................35Security............................................................................................................................................35Access to Information ......................................................................................................................36Language of Service.........................................................................................................................36

Co-Operation with Journalists ..............................................................................................................36Trends..................................................................................................................................................37

4. GOVERNMENT INFORMATION OFFICERS IN THE UNITED KINGDOM...................................39Political Dimensions of Being a Press Officer ......................................................................................39The Demands of Ministers ...................................................................................................................40Working with the Department ..............................................................................................................41The Press Office and the Role of the Press Officer ...............................................................................41

5. PRESS RELATIONS WITH GOVERNMENTS IN EMERGING DEMOCRACIES ...........................44After the Change..................................................................................................................................44Confidence is Key................................................................................................................................45Around the Region...............................................................................................................................46Other Shortcomings .............................................................................................................................47Coverage of Public Administration Reform..........................................................................................47

6. MASS COMMUNICATIONS AND THE PUBLIC ADMINISTRATION IN HUNGARY..................48Introduction .........................................................................................................................................48Print and Electronic Media...................................................................................................................48The Journalists' Situation .....................................................................................................................50Press Officers and Journalists...............................................................................................................51Journalists' Expectations ......................................................................................................................52Final Remarks......................................................................................................................................53

ANNEX 1................................................................................................................................................54A Code Of Ethics For Journalists .........................................................................................................54

ANNEX 2................................................................................................................................................55NAGC Code of Ethics..........................................................................................................................55

7BACKGROUND PAPER

The Need to Communicate

For a democracy to operate effectively, the government must communicate with the citizens ofthe country. They have a right to know what government ministries and other public sector bodies aredoing, and why administrative decisions are made. The information provided by government must becredible and timely. In order to reach large numbers of people, the government must rely on the media,which filters and analyses information provided to the public electronically or in print.

Public administration reform requires a parallel reform of the role of citizen responsibility.Leaders of public administration reform need to communicate with the public, apprising them of thechanging roles between citizens and the administration and what to expect from change. There is a need atall levels of society for a fundamental definition and understanding of the:

specific roles of various public administration bodies; limits of those roles; and sanctions available to the public in the event of non-performance by those with public sector

responsibilities.

This process of definition and understanding must begin with political leaders and publicservants. At the same time, the difference in roles between the permanent civil service corps and electedand appointed political officials must be delineated.

Above all, every effort must be made to build confidence between the public administration, thecitizenry at large, and the media. Individual citizens need to understand services provided byadministrations and the new training and accountability standards being applied to civil servants. Thiswill help to demystify the public sector while building up external respect and support for the continuingprocess of economic and political transformation.

Learning Skills and Targeting Audiences

Public administration reform groups, and the public service as a whole, must build up theircapacities to "market" their programmes. A dual-learning process must be mastered for this to beachieved:

Public servants need to learn basic communications techniques for dealing with the media andother communication channels as vehicles for building consensus and support foradministrative reform.

Media managers in the private sector need to improve their understanding of the role of thepublic sector and problems of reform, and to consider the potential interest to their customersof dealing with public sector issues.

8Consensus-building in a reform process that requires major cultural change implies a two-pronged communications programme tailored to specific audiences. The general public and publicservants are principle targets. They can be reached through the written and electronic press, advertising,direct mail, community briefings, and in-school education programmes.

Opinion formers should be the target of a very specific programme of personalised and in-depthbriefings. Included among this group are journalists, business and industry groups, trade unions and tradeassociations, academia, and non-governmental organisations.

The Role of the Media

The media acts as a channel of communication and as an active participant in the reform process.The second role is played whether or not there is a government communications programme and may bepositive or negative. The question for government is how to convey its message to the media, whichwields a great deal of power in every democracy.

Governments and administrations need to learn to tolerate and appreciate the role of anindependent media in the reform process as an essential supplier of feedback as well as a communicationchannel. The effectiveness of the media in its role as communication channel depends, however, on thegeneral situation of the media - both the reality and the perception of its independence.

Communicating Reform to the Media

Those in the public sector should keep in mind a number of general principles and techniqueswhen communicating with the media:

Build Consensus as the Foundation for Policy Implementation:

Governments and reformer groups must "lobby" for support of their own reform. Thus, anearly programme targeted to the different pressure groups as to the changing roles and responsibilitiesbetween the public and private sectors can help make the new public policy system work more effectively.Example: meet with doctors before changing rules for visits by the ill to hospitals.

Maintain a Consistent and Clear Information Flow:

All press briefings and contacts do not have to be news events. It is essential, though, todevelop a sense of "complicity" with the audiences that you want to influence so that they feel that theyare consulted on and informed of what is going on. Example: meet a journalist informally to discussgeneral options being considered to curb bribery in the Customs Service.

Communicate Early on Sensitive or Complicated Issues:

This is particularly important in the complex media environment in Central and EasternEurope where there is great diversity and a "free-for-all" environment, and where the media is establishingits own credibility by demonstrating its ability to criticise in a constructive fashion. Example: inform themedia well before 1 January of higher utility charges to be implemented in the new year.

9 Be the Spokesman for your Own Initiative or Crisis:

Do not resort to "no comment" and let others talk about your problem and distort facts; tellyour own version - even when it is difficult. Example: present an honest answer - co-ordinated with otherappropriate authorities - to a question about the use of ministry cars and expense accounts for personal use.

Adopt a Pro-Active and Long-Term Communication Strategy:

Put all information within the context of a strategic programme and link your messages with"hot" topics. Example: explain that the sale of a major firm to a foreign company is part of a broaderprivatisation programme involving national and international parties aimed at revitalising a formerlycommand economy.

Transparency to Encourage Trust:

In the new environment, as compared to the old situation, openness or communicatedinformation is the key to power and to building trust and credibility with the media and general public;although this is complicated and requires sophisticated and vigilant management techniques, it is essentialto building a consultative style of governance. Example: make the text of a new regulation on banningtobacco sales widely and easily available without delay.

Differentiate Between Types of Information:

The principal types of information communicated by governments and public administrationscan be broken down generally into the following categories:

statistical data (labour, fiscal, monetary, etc.); citizen services (rubbish collection, health clinics, libraries); government policies (taxes, military reform, privatisation); and political party information (candidates list, campaign platform).

It is very important to differentiate among these types of information to maintain theintegrity and neutrality that is associated with information normally provided by public administrations.Example: state funds should not be spent to publicise the appointment of a new vice-chairman in a rulingcoalition party.

Formulating a Communications Programme

A strategic communication programme contributes in a very important way to the publicadministration reform process. Some possible approaches include:

Create a Strong Economic, Political and Social Case for Reform:

carry out an internal audit of skill resources, skill needs, internal and external perceptionsso as to quantify and justify reform recommendations; involve members ofadministrations early in the process; and serve as a measure to monitor the reformprocess;

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demonstrate how each improved public administrative department will better serve societyas a whole using examples of success;

explain why different skill bases are needed, what new tasks will be performed andservices provided, and what the implications are for salaries or employment; and

use comparative information and third-party testimony to justify your case - OECDstatistics, other country statistics in similar administrations (ie education level, salaries,skills required in each administration), think tanks and academic experts.

Identify Support (and Opposition) Groups: work with business associations, chambers of commerce, academic experts, trade unions,

consumer groups and NGOs to form an alliance in support of the administrative reformprogramme before you communicate.

Communicate the Strategy for Administrative Reform Clearly, Often, and in the Context of aLong-term Strategy:

show how reform of your administration is going to have an impact on its ability to deliverservices; and

set targets and standards for monitoring reform and communicate them regularly.

Issues for Discussion

The above points suggest a number of areas for examination at the seminar entitled "The CivilService and Communication". Among these are:

Organisation of a Government Information Office:

how is the office organised?

how does it co-ordinate with the rest of the public administration?

what is its relationship to political levels of the administration?

what services does it offer to the public in general and to the media in particular?

how much of its work is dedicated to public relations? Public interest matters? Media?

is the office different from ministry to ministry and does it serve different functionsdepending on the ministry?

Policies of a Government Information Office:

what is the role of a government information officer, and what is the mission of his/heroffice?

what kind of ethical or procedural guidelines apply to the work of the office?

is there an overall understanding or strategy about government communications?

how are requests for information screened, directed?

what information can be given out, and what cannot be divulged (eg military secrets,personal tax information)?

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to what extent are ministry experts used to provide information?

is there a division between non-partisan institutional information and party politicalinformation?

Staffing of a Government Information Office:

what kind of training do employees receive?

are officers career civil servants or political appointees?

where is recruitment done?

is the "skills-mix" of an ideal employee changing? Inter-Action with the Media:

what are the challenges in getting journalists to report on particular topics in the publicadministration?

what channels are used to convey information (eg press conferences, informal meetings,media announcements)?

what techniques are used to reach the media (eg timing announcements to editors'schedules, strategic "leaking" of news, keeping messages short and focused)?

how can distortion of the message be reduced?

how does a government information officer build up trust with journalists? how does one respond to bias or errors in reporting?

how are sensitive and controversial topics best handled? Hungary's Media Law and Other Developments:

what are the risks and opportunities of the Prime Minister's decision to hold regular pressconferences?

what limits should be placed on journalists' use of information presented at these and othergovernment press conferences (eg curtailing the making of video and audio recordings,placing an embargo on release of news from the event)?

what will be the effect of the Media Law on the work of government information officers?

how will new private radio and TV stations affect the work of a government informationoffice?

how can government information offices make the best use of technology (eg recordedinformation provided by touch-tone telephone, Internet, CD-ROM)

how does Hungary's integration into European and other international networks andorganisations affect the presentation of information (Should information be provided inforeign languages? Should information about domestic topics highlight relationships tointernational obligations and policy goals?)

how can effective informational campaigns be conducted with minimal resources?

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1. GOVERNMENT COMMUNICATIONS IN THE UNITED KINGDOMby Jack Gee1

In the United Kingdom, the mass media is much criticised. It trespasses upon personal privacy.It plays at politics. It is self-regarding. It defends itself fiercely against all criticism. It often huntswitches which exist only in its own imagination. It is in the hands of a few ultra-wealthy people. FleetStreet in London, where until recently all the major national newspapers had their offices, is alsosometimes called Grub Street or the Street of Shame. Newspapers have been like this for centuries. Allthat is new is that technology has given them a bigger bite.

But it is hard to see how a democratic society can fully flourish without a free press. Some ofthe demons it pursues and the devils it reveals deserve their fate. If it tramples upon privacy, the result isoften truth. It holds the ring between vested political interest and the common public good. It is theFourth Estate.

Against this background every organisation, be it public or private, requires an increasinglyprofessional body to manage the flow of information to the public via the media; to advise principals onhow to deal with the demands of the media and to sift newspaper and televisual coverage. These also needto be expert in marketing and paid publicity techniques. It has already become apparent that differentcountries have widely different methods of operation.

In the United Kingdom there are about 1 000 professional information officers spread throughoutthe government in ministries and sponsored agencies. Their duties are to respond to press enquiries; writenews releases on various aspects of government policy; prepare articles and messages for newspapers andmagazines; arrange press conferences and briefings for ministers and senior officials; advise on targetaudiences. They also prepare advertising campaigns; run exhibitions at home and abroad, arrangepublication of government literature.

Their main purpose can be divided into four broad areas:

i) to create and maintain an informed opinion about the subjects with which eachdepartment or agency deals;

ii) to use all methods of publicity - short of propaganda - to help the department or agencyachieve its purpose;

iii) to assist and advise in all matters bearing on relations between the department and itspublic; and

iv) to advise the department and its ministers of the public's reaction to the policies of thedepartment.

I am the Deputy Director of Communication and Head of Information for the Department of theEnvironment in the United Kingdom. Ours is a complex department dealing with many aspects ofGovernment policy as it touches the public: local taxation, environmental concerns, land use planning,public and private housing, inner-city regeneration and other allied subjects.

1 Jack Gee is the Deputy Director of Communication at the Department of the Environment,United Kingdom.

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I am charged with the responsibility for the news output of the Department; for its publicadvertising currently running at about UK 12 million a year; for its publications and for its regionalnetwork of information officers in all the major cities. In addition I have responsibility for themanagement of all internal communications within my department, for its library; for its cartographers;for its public enquiry unit and for its staff newspaper (a monthly).

In total my staff is 160. But only 35 of these - those dealing directly with the media and thoseengaged on marketing projects - are professional information officers. They are public servants whosemajor job is to ensure that the policy message is put across free to the press or through marketingmessages.

In the United Kingdom professional information staff are centrally recruited and career managed.They are recruited, usually with degrees in communications from universities, tested and if they pass,placed on the lowest rung of the career ladder - assistant information officers.

Learning on the Job

Their first two years in this grade are probationary. They attend assessment centres and thenmove to a higher grade - information officer - usually in other ministries. As they progress up thepromotion ladder, moving in the process from one ministry to another in different posts, they gainexperience in all aspects of communications work. They learn first of all to deal with the media on a dayto day basis, seven days a week, 24 hours a day. They learn how to write news releases - 1 000 a year - sothat they can be reproduced electronically in the press with a minimum of alteration.

They learn that they exist to inform and guide on policy issues, not to "sell" policy or engage inpolitical propaganda. That is for politicians. They learn that their most valuable asset is credibility. Thatonce they mislead the media will not trust them again. Then, as they progress, they learn how to deal withand advise Ministers and senior officials. How to assess news value. How to target audiences to achievemaximum impact. They are taught the most important message of all: that it is no good making policywithout a means of communicating that policy. Communication is a vital part of all policy making.Marshall McLuhan again.

They learn the rules of the game. What is meant by an unattributable briefing, why suchbriefings are required and in what way are they different from open press conferences and how to choosethe method of communication. They learn how to time the release of news to achieve maximum impacton radio and television and, in different circumstances, in newspapers and any electronic means ofdistribution. They learn to be aware of newspaper deadline requirements. Electronic newspaperproduction has not, in the United Kingdom, led to later deadlines. All national newspapers now haveearlier deadline times than they did ten years ago.

In the United Kingdom there are many regional newspapers, published daily and weekly.Together they sell more copies than the national press. They are, therefore, a very important targetaudience. In order to cater for their regional and sometimes very local needs, we maintain press officers inthe major cities of all regions. Their duties are to disseminate departmental policies to very localaudiences, newspapers, local radio and television. They also provide a daily playback to me on what thelocal media are saying about national issues. This helps me in briefing ministers and my fellow officialson the public's views of our policies. It keeps a finger on the pulse of local reaction.

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The way that the broadcast media has expanded over recent years and will continue to expand inthe future has added new dimensions to the work of government press officers. Television is now themost important channel for communicating with the public.

Whenever an announcement is being planned, the need to secure time on television for theminister who is making the announcement is an essential ingredient in the planning of the media coverage.The press officer must ensure, through early planning, that the broadcasting media have slots in their newsprogramme schedules for ministerial interviews. They must try to make sure that the announcement ismade early enough for the interview to run on the screen throughout the day. They must try to plan theannouncement so that it does not coincide with other major news stories - although, for obvious reasons,this is not always within their control.

It is a part of the job of the press officer to deal with the news facilities organisations ontechnical issues. To learn the nuts and bolts. To ensure camera crews are correctly placed at pressconferences; that adequate lighting is available; that sound is up to broadcast standard. Most interviewsare recorded. The interviewer will ask more questions than he needs to and, later, edit down his newsitem, to about two or three minutes.

The press officer, who is always present at the interview, will be alert to this and will try to keepthe minister's answers succinct. And will, in advance, have provided "sound bites" to help the minister toconvey the message as briefly and clearly as possible. The press officer must also be alive to the need tostep in to correct any inaccurate or unfortunate remarks made by the minister in the recorded interview.

The Role of Television

Television, particularly, is in the entertainment business. Editors and producers are alwayslooking for novel ways of presenting their programmes - especially in the field of current affairs. Whendealing with an interview request for his Minister to take part in one of these programmes, the press officershould ask himself some basic questions.

a) Will the minister's appearance advance the government's policies and benefit thedepartment?

b) Is there something to say?c) Is the timing right?d) Is there some misunderstanding which needs to be cleared up?e) Is the programme balanced or is it too heavily weighted against the department or the

minister?

If the shape of the programme seems unsatisfactory, the press officer should negotiate betterterms on behalf of his minister. Sometimes, this leads to confrontation. But the press officer must alwayshave in his mind the need to maintain good relationships between himself and the broadcast media -tomorrow's story may depend upon it.

As television output expands so does the demand for arrival and departure footage, this is acommon dilemma for politicians of all parties because shouted questions seem to get louder and morepersistent and inevitably ministers and government officials become increasingly concerned at theimpression they are making. It has to be realised that the doorstep soundbite is a critical form of politicalcommunication. It has become so over the last several years.

15

When public figures are shown on the screen walking along or getting out of their cars, viewersalmost expect to see or hear some sort of acknowledgement. Nor is it about speech alone. Body languagecan be almost as important as words. Politicians who are always offhand with waiting journalists and whofail to observe courtesies run the risk of damaging their reputation not only with the news media but alsowith the viewing and listening public.

Those advising Jacques Delors, when he was President of the European Commission, wereobviously very aware of this factor. M. Delors was a hated figure in the United Kingdom, and particularlywas a victim of pillory in some of the more right wing press. However, he became very good at using histelevision doorstep encounters to improve his image. Journalists, producers and television crews inBrussels noticed that he went out of his way to smile, acknowledge their presence and say a few words inEnglish. This was presumably because he had realised that there was every likelihood that a soundbitedelivered on the move would be used sometimes in preference to more formal answers given at newsconferences.

Thus, by being co-operative he gained a valuable platform for positive messages about theCommission and his work and in addition he became a favourite of the media pack. I feel that this methodof transmitting impressions in body language/soundbite form is an art that we would do well to studyfurther.

Serving as a Go-Between

One important aspect of a press officer's work is to advise his fellow officials on theirrelationships with journalists. That they must not trespass on the responsibilities of ministers. That at alltimes they preserve the political neutrality of the civil service. That they should consult the relevant pressofficer for advice before they speak to journalists.

None of this is designed to inhibit contact. But the press officer may be aware - if the official isnot - that the journalist is pursuing parallel enquiries with more than one official or even more than onedepartment.

Journalists sometimes seek to write "profiles" of senior officials. Such interviews can bevaluable in putting across the process of change and enhancing the public perception of the civil service.The press officer should negotiate the terms of such interviews and ensure that he is present at them.

Informal telephone conversations between officials and journalists should be discouraged by thepress officer because of the lack of control over the terms of what is being asked for and given. It isalways better to put discussion of departmental policy on a formal basis.

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Communicating Changes

Finally a word about communicating the machinery of government change to the outside world.

It is, obviously, important that any change which affects the established administrative ordershould be effectively communicated to those most concerned. The Department of the Environment iscurrently undertaking a comprehensive review of how it operates. It is looking at its grading structure, itsorganisation and costs, its numbers of personnel. We have chosen to communicate the progress of thesechanges first to staff, through seminars, questionnaires, meetings and by means of a specially producedweekly news-sheet.

Second, we are communicating externally to our customers, local government, affected agenciesand through the media to the public the nature of these proposed changes, the benefits we expect them tobring in terms of deregulation and savings to the public purse. This will be an ongoing process and willend with Ministerial decisions being taken next year about the future shape of the British Civil Service.

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2. GOVERNMENT COMMUNICATIONS IN BELGIUMby Mieke van den Berghe2

In a democratically organised country, the way in which the government operates must betransparent. The population is entitled to know exactly what the various government departments do, andhow and why administrative decisions or rulings are made.

First and foremost, there must be a constitutional framework to make a flow of informationpossible. In addition, the government must provide structures for co-ordinated two-way governmentcommunication. And third, there must be rules to regulate information provision.

Before outlining the Belgian legal framework for government communication, however, let usfirst say a few words about the Belgian state structure. The first article in the Belgian Constitution reads:"Belgium is a federal state, composed of communities and regions". Belgium has three communities(Flemish, French and German-speaking) and three regions (Flemish, Walloon and Brussels-Capital).

These communities and regions add up to six entities, each of which has its own "executive" and"council" and independently exercises a number of powers over cultural and/or economic affairs. Eachgovernment can regulate its own communication with its citizens. However, the federal state stillexercises a number of powers over all Belgians. These are covered by the 11 federal ministries:

Services of the Prime Minister; Civil Service; Justice;

Home Department;

Foreign Affairs, Foreign Trade and Development Co-operation; Defence;

Finance;

Labour and Employment; Social Affairs, Health and Environment; Agriculture and Self-Employment; Economic Affairs, Transport and Infrastructure.

The "Federale Voorlichtingsdienst - Service Fdral d'Information" (Federal InformationService, or "FIS") works for federal authorities, including the government, at this level.

The Belgian Constitution lays down a number of fundamental rights which make it possible toprovide, gather and disseminate information:

2 Mieke Van den Berghe is the Director General of the Federal Information Service, Belgium.

18

Article 19 guarantees the freedom to express one's opinion on any subject, barring abuses ofthis right;

Article 25 guarantees the freedom of the printed press and forbids the introduction ofcensorship. This provision must be broadly interpreted. It forbids any preventive measurewhich is aimed at or results in some opinions not being disseminated by the press by virtue oftheir nature;

Article 32 determines the publicity of administration.

The terms under which the administration engages in publicity is interpreted by the federal state,the communities and the regions. The Law on the Publicity of Administration was passed in 1994, andcontains chapters on both active publicity and passive publicity. The articles dealing with active publicitystate, among other things, that the organisation and tasks of the Federal Information Service must bedefined. All federal administrative authorities must also instruct a specialist body to design and draw upthe information policy. The articles covering passive publicity, in their turn, look at the right of citizens toinspect government documents.

There is no actual law regulating the flow of communication between the government andjournalists. In theory, decision-making is confidential. The Prime Minister determines how to organisecommunication - via press releases, press conferences, a speech in Parliament, etc.

Objectives of the Federal Information Service (FIS)

The federal government holds executive power in the federal state and the Prime Minister headsthe federal government. The Prime Minister also serves as the spokesperson for the federal government;he maintains relations with the press on behalf of the government.

Two channels are available for making announcements about government decisions. On the onehand, every minister, including the Prime Minister, has his or her own political spokesperson, known as apress attach. This person forms part of the minister's personal staff. Press attachs provide informationabout the political aspects of their particular minister's policy; they are involved in political interpretationand are attached to the person of their minister.

On the other hand, the FIS provides factual information. The Cabinet meets weekly and takesdecisions. After each Cabinet meeting, the FIS issues press releases to all media in the country about thedecisions taken, via a simultaneous fax system to all media in the country, and via the Internet. Throughthis site on the World Wide Web (http:///www.belgium.be/belgium), readers may view press releases.

Press releases (whether published or in electronic form) are not personalised and always give astraightforward account of the decision taken. The name, telephone and fax numbers and address of theperson in charge of the file are always provided. This can be the press attach, an information officer, orthe civil servant in charge, if the information officer agrees.

All decisions are also published in the Service's journal, Feiten. This weekly publication reaches17 000 subscribers, including ministers at all levels of government; secretaries of state; members of thefederal, community and regional parliaments; members of provincial councils; and mayors, aldermen andcity counsellors. It is distributed to Belgian embassies all over the world, international institutions inBrussels, and the key actors in the financial, social and cultural worlds.

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The FIS also disseminates the texts used at the federal government's press conference, andcompiles press releases issued by the government/executives consultative committee (the governments ofcommunities and regions).

Federal Authorities Information Project

In 1992, the government decided to launch the "Federal Authorities Information" project in orderto improve circulation of integrated communication of the federal authorities. This project is an integratedconcept aimed at providing citizens with improved information about decisions taken by federalauthorities. Information is transmitted through channels such as advertisements in newspapers andweeklies, radio and television advertising features and leaflets in post offices, and/or libraries and townhalls.

Advertisements refer to a brochure with an address and/or a contact address. Citizens areprovided with details about official measures and laws and the consequences for them. The projectattempts to bridge the gap between the government and the citizen - the "neighbour" - and to makedecisions more understandable for every inhabitant of Belgium.

Every campaign must include an address or telephone number to which citizens can refer formore information. The fourth year of the project is under way, and close to ECU 1.5 million are spent on itannually.

Information Officers

The FIS is not the citizen's only source of obtaining information or an answer to his or herquestion. The Service is a central point in a network of several information points. Within the frameworkof the government's policy of administrative modernisation, the Charter for Users of Public Services waspublished. The Law on the Publicity of Administration and the right of civil servants' to speak fall withinthe context of this Charter.

Among other things, the Charter provided for the appointment of an information officer in everyfederal ministry and in federal government departments, and this has actually taken place. The informationofficer in theory gathers together all requests for general information made by telephone or in writing tohis or her department or division. In this respect, we talk about general information, not very particularinformation (eg for the handicapped or the unemployed).

Information officers are thoroughly familiar with their working environments and usually canprovide a satisfactory answer to enquiries. If an officer does not have the answer, he or she passes thequestion on to an expert colleague or makes further enquiries him- or herself.

Every federal ministry has an information officer. However, this does not mean communicationwith citizens takes place in the same way in every ministry, via this information officer and that officer'sdepartment. For example, the Ministry of Social Affairs, Public Health and the Environment has manysemi-autonomous governmental bodies (for sickness and disability benefits, pension funds, etc.) whichcontact the public directly. In practice, therefore, communication is decentralised.

The Ministry of Finance is large and has many specialised departments. This has has led to theappointment of 15 information officers for that ministry alone. The Ministry's chief information officerreports directly to the secretary-general.

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Individuals must match a certain profile to become information officers. Particular requirementsare related to attitude; knowledge and skills; and position in the public administration.

Attitude:

attitude to the government - eg the information officer provides information about his/herdepartment or organisation from that body's point of view, not a personal one;

attitude to the population - eg the information officer respects every user of public services,acknowledges the heterogeneous composition of the general public and ensures that he/she iseasy to reach and approach;

attitude to the press - eg the information officer is the person appointed to co-ordinate theprovision of information to the population via the media; he/she is the ideal governmentmouthpiece. In the long term, the information officer can take over the office of cabinet pressattach;

attitude to civil servants - in exercising their duties, information officers must rely on the co-operation of fellow civil servants. They therefore must always be ready to co-operate loyallywith the administration and maintain cordial personal relations with those in charge in alldepartments.

Knowledge and Skills:

matters requiring detailed knowledge - eg active bilingualism; understanding of the structureand operation of the institutions, public governing bodies and services at all levels; thestructure of the media and news service; the theory of information and governmentinformation, new technologies;

matters requiring less detailed knowledge - eg management and organisation of publicgovernment; meeting techniques; documentation and library techniques;

skills - eg clear, correct and creative writing style; excellent oral communication; good socialskills;

Position:

the information officer is directly attached to the secretary-general, the highest ranking civilservant in a ministry; thus, the information officer is given sufficient internal and externalauthority to perform his duties properly - eg being a spokesperson for that ministry.

Postbus 3000/Bote postale 3000

The two major pillars upon which the Federal Information Services bases its dissemination ofinformation are the press and the public. In the case of the latter, the continuous process of apprisingcitizens about the possibilities offered to them by the authorities and their decisions is a comprehensivetask. Ministerial departments distribute increasing numbers of brochures and leaflets on old and recentdecisions. Most of these brochures are excellent, but citizens may not always know how to get a copy ofthem.

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However, government information would be missing its target if the distribution of informationalmaterial were not efficiently organised. Since November 1988, a system has been in place which meetsthis requirement. It is known as Postbus 3000/Bote postale 3000 (Postbox 3000). This system is adepartment within the Service which ensures that government information reaches the citizen.

Postbus 3000/Bote postale 3000 brings information of the authorities to the citizen throughadvertising in the print or broadcast media. Advertising features are brief and succinct and systematicallyrefer to leaflets which are available to the public free of charge in every post office, and in many librariesand town halls in Belgium. In 1994, the FIS distributed over three million leaflets.

Each leaflet refers to a brochure or an information address for further information. It also comeswith a reply card for ordering the brochure directly from the relevant department or from the FIS. In anyevent, the brochure gives the address of the competent administrative body or department from which thecitizen can obtain further information.

This system allows the government to reach the widest audience possible while at the same timereaching those genuinely interested in particular issues. This avoids a large number of unnecessarytelephone calls to departments which are not involved and therefore prevents a good deal of irritation, bothfrom citizens and civil servants. In addition, Postbus 3000/Bote postale 3000:

gives citizens an address to which they may convey their concerns; reminds citizens where they may find a message (eg at the post office) if they should happen

to miss some details during a broadcast advertisement; and works chiefly for the federal government but also for other policy organs and levels, such as

the communities, regions, provinces and municipalities.

Information Centre and Publications

The FIS operates an Information Centre which is open every working day from 9 am to 4 pm.Here, citizens can consult or buy official publications by ministries, semi-governmental institutions,communities and regions. They can also come here to order photographic and video material or for ananswer to question.

In 1994, the facility welcomed close to 14 000 visitors. Whether this is a high or low number isnot important. What is important is that the "unknown authority" there in Brussels has a house, a doorbelland a threshold and that you can visit it.

The Service also publishes, either independently or in collaboration with others, practicalinformation guides of important government addresses in Belgium.

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The FIS in Numbers

During 1994, the FIS:

received 13 822 visitors; answered 32 324 telephone and written questions; distributed 3 065 000 leaflets; disseminated 986 000 issues of Feiten.

In order to publicise the information campaigns to the public at large, the FIS used:

eleven advertisements in daily newspapers; four advertisements in weekly publications; four advertisements in regional newspapers; 161 television advertising features; and 357 radio advertising features.

These figures were achieved with a staff of 47 employees (including five working part-time), anoperational budget of 100 million Belgian Francs (BF) for fixed costs, a programme budget ofBF 26 million, and a campaign budget of BF 50 million. In total, these figures amount to BF 176 million,or about BF 18 per citizen - approximately the price of a postage stamp (BF 16).

In order to make the most of its small budget, the FIS negotiated with the various media to agreeon preferential rates. The starting point for these negotiations is the conviction that governmentinformation must also be recognised as such. The individual nature of government information andmessages in the public interest, together with the individual nature of the procedures which thegovernment must observe in running its campaigns, makes it impossible to compare them with purelycommercial messages.

An advertising feature warning citizens about the dangers of carbon dioxide emissions cannot becompared with the message with which a multinational soft drink producer bombards its audience. Theusual advertising rates for commercial messages cannot therefore be used for messages in the publicinterest.

Following negotiations with the mass media, contracts were concluded with the radio andtelevision broadcasting companies (both national and local) and with the Belgian Association of DailyNewspaper Publishers and the National Federation of Information Weeklies. These contracts enable theFIS to enjoy considerable discounts. In 1994 at least BF 30 million were saved in this way, via theproject. These preferential rates therefore make collaboration with the Federal Information Service anextremely attractive proposition.

Of course, the essence of cost-effective operation involves more than just these contracts alone.Smooth co-operation with the network of information officers and a co-ordinated, structured exchange ofinformation avoids the creation of parallel information circuits and therefore saves money.

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For example, in order to counteract the proliferation of government information sites during therecent blossoming of the Internet, the FIS asked for authorisation to co-ordinate the government's Internettraffic. On 25 July 1995 the Cabinet decided that the dissemination of information to the Internet wouldindeed be co-ordinated by the Service. Thus, any federal government departments wanting to makeinformation available on the Internet must go through the FIS.

Externally, the FIS maintains very good relations with the various information departments ofother European countries. Contacts are established and experiences exchanged via the Venice Club.

Target Groups

In theory, all Belgians belong to the target group which the FIS attempts to reach through itscampaigns. In other words, the FIS does not usually run specialised campaigns targeted at demarcatedgroups (in terms of region, age, sex, minority, etc.). However, it does emphasise the messages aimed at allBelgians.

There are exceptions, though, and certain campaigns are aimed at specific target groups. Forthese campaigns, departments may call upon the FIS to take advantage of its know-how and capabilities.Some of the campaigns run by the Minister of Employment are a good example of these - Preferential JobsPlan, Youth Employment Plan and Local Employment Agencies.

Two target groups were identified for the campaigns developed for "Preferential Jobs Plan" andthe "Youth Employment Plan" (employment plans for the long-term unemployed and young unemployedpeople respectively): job-seekers and employers.

As part of the "Federal Authorities Information" project, advertisements for the job-seekers wereplaced in the more popular weeklies. These advertisements referred to leaflets available in post offices,town halls, job centres and trade unions.

The advertisements for the employers, also as part of the "Federal Authorities Information"project, appeared in the "quality" information weeklies. In addition, the advertisement also appeared inseveral small and medium-sized enterprises newsletters. These advertisements made reference to a leafletcontaining more information, which could be requested from the Ministry of Employment. The leafletwas also available in the various social secretariats.

One other prominent example of a targeted strategy was the campaign concerning LocalEmployment Agencies (PWAs). This campaign also was run by the office of the Minister ofEmployment. Its objective was to promote local "odd-job" services for the unemployed. The targetgroups this time were the unemployed who could be recruited, as well as the potential "users" of theseservices.

Within the framework of the "Federal Authorities Information" project, the advertisements forthe unemployed appeared in all the Belgian dailies. Those interested could find more information inleaflets made available at the usual locations, or by writing to the Ministry of Employment.Advertisements for the users appeared in all the Belgian information weeklies. These advertisementsreferred to a widely available leaflet. This campaign also had a regional flavour. An advertisement in theregional press (regional advertising periodicals) summed up the municipalities in each region offering thistype of odd-job service.

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Informational Needs of the Population

Consistently tracking society's need for information is anything but easy. In this respect,effective government communication requires a permanent screening of society and every campaign has tobe pre-tested and post-tested. However, this approach requires the usual human, material and financialresources. Since the FIS only has relatively modest resources at its disposal, it has so far been forced toadopt a smaller-scale approach.

The Service receives numerous telephone and written enquiries from citizens in search ofinformation. Many of the questions are identical or similar, and thus certain trends can therefore beidentified. For example, current topics always score highly. However, general matters such as economy,employment and statistical data also arouse a good deal of interest. Where possible, therefore, the FISlatches on to these trends by publishing guides and informative documents. The FIS always puts itself inthe place of the "neighbour". What is bothering that person? What does he or she want to know?

What about the campaign topics themselves? New government measures which impact much ofthe population are topics which have to be communicated. Examples of these include the newenvironmental protection act, the new rent act, the law on the publicity of administration, etc.

Contemporary matters of general interest are also considered for campaigns: the BelgianPresidency of the European Union, constitutional reform, commemoration of Belgian liberation, a publictransportation day, a new government loan, etc.

Obviously, campaign topics such as these and others are often raised by the ministerial cabinetsand the ministries themselves. Depending on their powers and tasks, they have to respond to citizens whohave problems or questions on a daily basis. This means that they are well placed to assess theinformation needs of citizens.

Of course, every campaign implemented via or by the FIS is evaluated. The emphasis in thisprocess is on quantitative results. From the quantitative evaluation results, some representativeextrapolations can be made which can be useful for information policy in the short and medium term.Qualitative research should also be undertaken, but financial means are lacking.

Where resources are available, a "zero measurement" is performed as part of major multimediacampaigns and the campaign material is pre-tested. This is the case, for example, for the campaign on thedistribution of iodine tablets which is currently being prepared.

Organisation of the FIS

The Network of Information Officers

As mentioned previously, information officers in all federal ministries must satisfy manyknowledge and skill requirements. It therefore goes without saying that they have to be supported by anextensive training package.

At federal level, the Selection and Training Department, a part of the Ministry of Civil ServiceAffairs, provides a range of general and more specific courses for civil servants. There is also much tointerest information officers. For example, its prospectus includes the following subjects:

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civil law;

government orders; leading a team; organising a department; conference techniques;

library administration and documentation; improving welcome techniques and contacts with the public; public speaking; readability of official texts; media relations; training in the communicators' club; and language courses.

The FIS also makes its contribution by providing all federal information officers with a"toolbox" containing texts and documentation to help information officers with the practical exercise oftheir duties. These include items such as model contracts, guidelines on how to conduct effectivecampaigns, and addresses where information may be sought. The FIS intends to offer its own coursepackage to the information officers in the near future.

Structure of the FIS

The Federal Information Service is a government institution under the auspices of the PrimeMinister and the Minister of Foreign Affairs. It is an institution which exists for the public good, and holdsa management contract with the federal government. More specifically, the information service receivessubsidies from the Prime Minister and the Minister of Foreign Affairs, as well as having its own income.

Since the FIS is not an administrative body in the strict sense of the word, its employees are notpermanent civil servants, but do work as civil servants for the duration of their contracts. Staff is recruitedthrough examinations which relate to the duties to be fulfilled.

A 25-member Board of Directors manages the FIS and meets four times annually. A maximumof ten of these members form the Committee (which gathers eight times per year). This latter groupoversees implementation of Board decisions. The director-general manages the Service's day-to-dayoperations, and is assisted by a management board, consisting of a deputy director-general and fourdirectors.

The Federal Information Service has five departments - Promotion and Distribution,Documentation, Editing, Government Communication, and Production. In addition, there are four cellswhich deal with the internal operations: Secretariat, Personnel, Accounts and Administration

Since information initiatives are taken by various bodies, proper co-ordination of information atfederal level is absolutely essential. For this reason, the Federal Information Service is an activeparticipant in various committees and working parties dealing with information matters. The FIS also co-

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operates with information services of sub-national governments to provide Belgian citizens with a clearand co-ordinated information policy.

Working Procedures

Official Guidelines for Government Information

Among the laws affecting the provision of government information is the Law of 12 July 1994on Electoral Expenses Regarding the Supervision of Official Government Announcements. This law isintended to prevent members of the federal, community and regional governments using officialannouncements and information campaigns, irrespective of the media channel used, to improve theirpersonal standing. Note, however, that the announcements and campaigns in question are not binding uponmembers under any legal administrative provision and are financed directly or indirectly using governmentfunds.

The parliamentary inspection Committee tests these announcements and information campaigns.Anyone who wants to make an official announcement or wishes to run a campaign must submit asummary document to the Committee. This document states the content, reasons, resources, total costprice and companies consulted for the announcement or information campaign. If the Committee judgesthat a campaign or announcement is not neutral, its cost price will be deducted from the election budget -which is limited - of those involved, at the next elections in which they take part.

In addition to this law, the Law of 18 February 1977 also contains provisions concerning publicradio and television services. This legislation stipulates that "Government announcements are forbiddenduring the two months preceding an election, urgent cases excepted. In such cases, the announcementsmay not contain either the name or the face of the minister. They must be purely informative."

Belgium does not yet have ethical rules or regulations for government information, but the FIS isworking to develop an ethical code.

Telephone Enquiries

To respond efficiently to telephone enquiries, a number of internal procedures have beendeveloped. For example, the receptionist has a reference list of the files and is therefore aware of "whodoes what" within the department. He/she also is kept informed which personnel members are absent.

Due to a relatively small staff and the large number of telephone questions, it is not alwayspossible to deal with these questions quickly. Whenever possible, those responsible provide an answerimmediately or pass it on to someone else. If research is required, the person asking the question willreceive a written or telephone answer.

An initiative of the highly regarded Dutch Government Information Service - "Project 06-51" -has been an influence on the FIS approach to handling enquiries by telephone. This initiative sought toestablish a common telephone line for all Dutch ministries. The caller is charged for dialling the number06-51, but information is provided without additional cost. Citizens can obtain an immediate answer totheir government-related questions, or find out where they can obtain more specific information. Theseparate ministerial information services continue to exist, but 06-51 constitutes the central point for themost requested data of the Dutch federal government.

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The telephone switchboard is not manned by new personnel, but by 40 information specialistsdetached from the ministries for one year. These professionals are highly qualified and have undergonespecific training on how to limit a telephone conversation to four minutes, how to cope with advancedtechnology, etc.

Types of Information Provided

As explained earlier in this paper, press attachs who belong to the office of their minister,provide information about the political aspects of their minister's policy. The FIS, in contrast, alwaysmaintains its neutrality and objectivity in all of its activities. For example, the Service does not provideinformation with photographs and names of ministers, but rather provides neutral reports of decisionswhich have been taken.

The FIS does not provide information about the preparatory work which precedes decisions.Often such information involves confidential documents. In this respect, the Law on the Publicity ofAdministration states that an administrative document may not be inspected if its publication violates thesecrecy of the deliberations of the federal government and of the other responsible authorities whichdepend on the federal executive power, or in which a federal authority is involved. Advice or an opinioncommunicated in confidence to the government is also not made public. There are also other exceptions.

Another legal measure governing the publication and dissemination of certain information is theLaw Safeguarding Personal Privacy with Respect to the Use of Personal Information, usually referred to as"the Privacy Law." It was passed on 8 December 1992, and forbids the registration, storage, alteration,deletion, consultation and dissemination of personal information about natural persons (not therefore aboutlegal entities or organisations without legal personality).

The ability to identify a person (for example using a customer number, account number, etc.) isthe criterion which distinguishes personal data from statistical data, to which the law does not apply. Togive a couple of examples, the law lays down purposes for the use of the following types of information:race, ethnic origin, sexual behaviour or political, ideological or religious conviction or activity,membership of a trade union or hospital, etc. Provision of medical and legal information also is strictlyregulated.

The parliamentary Committee on Safeguarding Personal Privacy supervises the implementationof the law. It gives advice concerning implementing orders relating to the law, makes recommendations,investigates complaints, etc.

Co-Operation with Journalists

Differing Roles

An initial condition for smooth co-operation between an information service and the press ismutual acceptance. Both parties have specific fields of work and are organised appropriately for suchwork. In Belgium, many journalists consider the FIS a competitor, rather than an ally. However, theService does not wish to be perceived in this way.

There is a fundamental difference between the information which the FIS provides, on the onehand, and that provided by journalists, on the other. When journalists write an article about a particulardecision, they place this information within a certain framework. They are closer to current affairs, and

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their newspaper needs scoops. They measure the importance of government decisions according to their"news value." Journalists have to comment on decisions. The reader wants them to do so.

By contrast, the logic of the Service is different. The FIS provides information on both old andnew measures. A newspaper is thrown away after a few days, but FIS leaflets are available for extendedperiods. The information disseminated by the FIS is sent out without comment (eg newspaperadvertisements), and is packaged differently than journalists' articles.

The FIS does not conduct public relations campaigns for politicians or particular ideas.Neutrality and objectivity are the keywords in any task undertaken. Within the framework of a campaignconcerning the distribution of iodine tablets, an information is to appear in the press. The topic (nucleardanger) is so delicate that the information provided must be uniform. This means that the federalgovernment, the local authorities and the press have to tell the same story so as not to create confusion oranxiety among the populous.

FIS activities are attractive for reporters. As already mentioned, the Service provides a ready-made press release about every Cabinet decision. Within 15 minutes of the end of a Cabinet meeting,every editorial board receives these press releases by fax and can access them on the Internet. Every reportalso contains a contact address for further information. A press folder issued after the Cabinet meetingcontains between 20 and 50 written pages.

The FIS also provides informal briefings, eg when new books or brochures are published. Inaddition, journalists receive free copies of all FIS guides, which can help him or her do his or her job. TheFIS works hard to develop a trusting relationship with the media. Editors trust the FIS because they willalways receive the complete package of press releases immediately after every cabinet meeting, and at thesame time as other representatives of the media. No one receives preferential treatment. In addition, cleararrangements are always made with the media. The FIS ensures that the information is disseminated at theagreed time, and journalists observe embargoes which have been imposed.

Occasionally incorrect information relating to the FIS appears in the media, intentionally orotherwise. The Service responds promptly with a telephone call or a letter. If necessary, a right of replycan be used, but this has not been used to date.

"Every man to his trade" is a wise motto. It also applies to information and the provision ofinformation. An information service and journalists can indeed be the best of partners provided they stayout of each others' territory. They both disseminate information, but at different phases of policydevelopment and implementation. In theory, the press devotes its attention to the preparatory policyphases and the actual decision-making. FIS information does not appear until a decision has been taken.

Trends in Government Information

In the years ahead the landscape of government communication in Belgium will undergo severalmajor changes. However, these changes are in fact a necessary consequence of the path which has alreadybeen chosen.

So what is in the offing? In the first place, Postbus 3000/Bote postale 3000 will be furtherexpanded. Indeed, the objective is to organise the system so that it becomes Belgium's sole informationaddress for citizens who do not know to whom they should put their questions. In more specific terms, ifa citizen has a question, he or she will send it to Postbus 3000/Bote postale 3000 which will ensure that it

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reaches the person who knows the answer. Behind the system, the federal state will work with the sub-national governments to offer one address for one problem.

FEDENET, the federal information network, is becoming the electronic counterpart of thenetwork of information officers. This network groups together several sub-networks which gathergovernment databases by field of information, such as justice, economic affairs, and finance. Through thisnetwork, it will be possible to exchange relevant policy information within the federal government.

Moreover, the federal government will systematically make data available on the publicinformation super highways. The FIS will continue to manage the dissemination of data from the federalnetwork to the Internet. Co-ordination will prevent duplication and data will be disseminated uniformly.

In addition, government communication will acquire a much clearer profile. In this respect, theFIS will provide the necessary incentives, partly by compiling an ethical code.

The influence of European and other directives is increasingly being felt at the FIS. Forexample, depending on the cost of a campaign, an international invitation to tender may have to be issued.

Recent Events and Campaigns

Several accomplishments which fit in with the user's Charter were of major importance to theFIS as well as to government communication in general in recent years. Virtually all information used tobe provided by press attachs and was politically tinged. Non-partisan institutional communication hastaken root. The Law on the Publicity of Administration was passed, information officers were appointedfor every federal department, and civil servants were also given the right to speak. The Charter for User'sof Public Services therefore forms an indispensable catalyst for the current and future development ofinformation policy.

The FIS also set out along the information super highway. The FIS developed its site on theInternet and is a major partner in the realisation of FEDENET. Also, the "Federal AuthoritiesInformation" project was extended for the fourth time. By increasingly involving the information officers,this project underwent reorientation and institutionalisation.

The scale of FIS information campaigns is always directly proportional to the available budget.A campaign can therefore be run in many different ways, ranging from a one-eighth page black and whiteadvertisement in the daily papers to a multimedia approach.

The best examples of the latter type of strategy, a campaign receiving considerable mediacoverage, was the "Constitutional Reform" campaign and the "European Presidency" campaign, both ofwhich ran in 1993. These campaigns used advertisements in the daily papers, the information weekliesand the regional weeklies, as well as advertising features on the radio and on television. Leaflets andbrochures also were published. The FIS even produced two teaching packages for secondary schools forthe "Constitutional Reform" campaign.

More recently, in 1995, a major multimedia campaign was launched to commemorate 50 years ofsocial security provisions. The media used were the daily papers, information weeklies, regional weeklies,television and radio. Leaflets and posters were also printed and the campaign was rounded off with anacademic session. At this moment, two information campaigns are being prepared. In addition to the oneconcerning the distribution of iodine tablets, there also will be a campaign dealing with eco-taxes.

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3. GOVERNMENT COMMUNICATIONS IN CANADAby Carla Gilders3

Introduction

Principles of Government Communications

Underlying the federal government's communications policy and its approach to dealing with thenews media, is the principle that the responsibility to provide information is inseparable from the nature ofrepresentative government. Adequate information is essential in order that the public may understand,respond to and influence the development and implementation of government policies and programmes -whether as individuals, through representative groups or their Members of Parliament.

The Canadian Government's communications policy recognises that the free flow of informationbetween the government and the public should be carried out through both formal and informal exchangesin a dialogue that is continuous, open, relevant, understandable and reliable.

Role of Elected Representatives and Public Servants

Under the Canadian parliamentary system, ministers are accountable to the Prime Minister and toParliament for presenting to the public the policies, programmes and priorities relating to theirresponsibilities. As part of these responsibilities, ministers, both individually and collectively, are theprimary spokespersons for the Government of Canada and they provide leadership in establishing thepriorities and themes of government communications.

As elected politicians, ministers and the political staff that support them, are partisan, politicallyoriented and yet operationally sensitive. The deputy ministers and the public servants who support themare non-partisan, operationally oriented, yet politically sensitive.

It is up to the ministers to establish their communications priorities for their own departments; itfalls to deputy ministers to ensure these priorities and requirements are met. And it falls to the Clerk ofthe Privy Council - the government department that supports the Prime Minister - to ensure thatcommunications across government fully reflects government-wide priorities, policies and themes, andthat departmental communications are fully integrated into the development, planning and implementationof policies and programmes.

Of all the functions of government, communications often "walks the line" between thepolitical/partisan activities of the elected politicians and the non-partisan/bureaucratic activities of thepublic service. Ideally, the two can work together in a complementary way to support the free flow ofinformation about government plans, policies and programmes between the elected politicians and thepublic.

3 At the time this paper was written in Autumn 1995, Carla Gilders served as Director of Operations,Communications and Consultation in Canada's Privy Council. She now is the Director General of theCommunications and Consultation Directorate, Health Canada.

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The Communications Policy

Against this principle, the federal government has adopted a communications policy governingthe day-to-day management of the communications function. The function of communications - the dailywork of communications planning, co-ordination and execution - is considered an integral part of themanagement process of government.

It is the policy of government to:

provide information to the public about its policies, programmes and services that is accurate,complete, objective, timely, relevant and understandable;

take into account the concerns and views of the public in establishing priorities, developingpolicies and implementing programmes; and

ensure that the government is visible, accessible and answerable to the public that it serves.

Functions and Activities of the Office

Mission Statement

The fundamental mission of the federal government is service to the public. In the last fewyears, as part of a government renewal exercise launched by the former Prime Minister in 1989, mostfederal departments have developed their own mission statements that reflect this service orientation andembody it in their statements of core values, guiding principles and strategic objectives. Service to thepublic is a key element of the communications policy.

As the policy states, "communications is more than simply providing or receiving information.It also concerns the manner in which that information is exchanged. The quality of the transaction has animpact on the usefulness of the information as well as on the perception of the government in the mind ofthe public."

Communications, in its broadest sense, includes everything from answering the telephone toconsulting with citizens on policy proposals, to providing information on how to fill out a tax return, tobriefing journalists or holding major news conferences. In some senses almost everything the governmentdoes becomes a question of communications.

But as a management function, as a "job description," the communications function encompassesfour elements:

i) Communications Research and Analysis:

Research and analysis includes the analysis of the public environment from public opinionresearch, media coverage, correspondence or telephone calls to the department.

Public consultation also gives the government an opportunity to seek the views of the publicbefore th